By using the two-step method of DEA and Tobit,the paper assessed 29 provinces’ (autonomous regions and municipalities) fairness of pension coverage in rural China in 2009 and analyzed the related factors based on the output index from pension coverage. It showed that most rural areas in China have inadequate investment in pension insurance and the problem of underutilization of pension insurance funds in some areas. Meanwhile,the aging level and the relative size of the government impose positive impacts on the input-output efficiency of pension coverage in rural areas,while the proportion of primary industry has a negative effect on it. Based on analysis above,the paper proposed some measures to expand the pension coverage and improve the level of insurance in rural areas from the aspects below,namely promoting economic development,increasing revenue,strengthening the government's responsibility,increasing investment in rural endowment insurance,and improving the efficiency of related resources.